EXECUTIVE SUMMARY 2004 Team Member WorldBank Teacher Employment and Deployment in Indonesia
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Teacher Employment and Deployment In Indonesia
1. Uneven distribution of teachers: The district data show that there are marked inequities in the deployment of teachers both across schools and districts. Some 68 of urban and 52 of rural
primary schools have an excess of teachers, while 66 of remote schools have a deficit. The imbalance between urban and remote areas is not as marked in junior secondary schools. Overall,
some 81 of junior secondary schools have an excess, while 13 have a deficit.
2
There are also reported mismatches in regard to subject needs in schools compared with teacher expertise,
particularly in English, sport and religion. Notwithstanding the question of excess and deficit of teachers in schools point 4 below, it is clear that there is an uneven distribution of teachers
across both schools and districts.
2. Inequities for remote schools: The district data indicate that there are acute shortages of staff in the majority of remote schools, with 93 claiming that they had a deficit.
3
Although there is a requirement for teachers, as civil servants, to serve where they are posted, the policy is clearly not
being consistently implemented. As a result of the deficits in the remote areas, some teachers have excessive workloads. These factors ultimately have an adverse impact the students. The
deficit of teachers in remote areas has been explained in terms of resistance to postings in such areas due to lack of adequate housing; poor transport; domestic responsibilities; concerns about
the isolation from family and friends; and the generally poor services and facilities in remote areas.
3. Teachers’ Low Workloads: There is great variation in the actual workloads of teachers. The district data show that almost half the primary teachers were reported to have a workload of less
than the minimum of 18 hours per week. Amongst junior secondary teachers, some 44 work less than 18 hours.
4
A major factor contributing to workload inequities is that specialist teachers, particularly those teaching sport and religious studies in smaller primary schools, may not have
enough classes for a full teaching load. Similarly, most junior secondary teachers teach only one subject, which restricts flexibility in staff allocation and increases staffing requirements.
4. Excessive Staffing Levels: National educational policy stipulates that, after a school is given its minimum teacher entitlement, a student-teacher ratio STR in primary schools of 40:1 and in
junior secondary schools of 28:1 is to be applied. These ratios are unrealistically high and are well in excess of comparable international STRs. In fact, the actual ratios found in Indonesian schools
indicate that the policy is not being applied. The survey sample data show that the actual STR is 19.0 for primary schools and 15.6 for junior secondary schools.
5
Available national data show ratios of 21:1 for primary schools and 14:1 for junior secondary schools.
6
By comparison, the average STR amongst AsiaPacific countries is approximately 31:1 for primary schools and 25:1 for
junior secondary schools.
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Given the relatively low STRs and the relatively low workload noted above, it is reasonable to conclude that actual staffing levels in Indonesian primary and junior
secondary schools are excessive.
2
Teacher Employment and Deployment survey, 2005
3
Ibid
4
Ibid
5
Ibid
6
MoNE data from Balitbang, 2004
7
Edstats online query database; note that the results for Indonesia in the Edstats database are in fact similar to the national data from Balitbang, so comparison of Indonesia data to international data appears valid.
Opportunities for Equity, Efficiency and Quality Improvement
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5. Low Remuneration: It is generally acknowledged that teacher salaries are low compared with other civil servants with similar qualifications. Allowances paid to teachers vary greatly, depending
on local circumstances. The field data show that only 36 of primary teachers and 52 of junior secondary teachers receive district allowances. Only 14 of primary teachers and 45 of junior
secondary teachers receive a school level incentive. Unsurprisingly, inequities are most apparent in districts andor school communities that do not have sufficient financial resources to pay
allowances, rather than in better off district andor communities. Anecdotal evidence suggests that the generally low level of remuneration affects teacher motivation, attendance, and
performance, and that it is not uncommon for teachers to take a second job to make ends meet. The new Teacher Law is designed to address issues of remuneration, but in the context of quality
where teachers are also expected to improve their skills and qualifications and meet minimum working hours in order to receive the remuneration. As increases in allowances will have
significant nation-wide budgetary implications, the importance of efficiencies in teacher management have become even more critical.
6. The Quality of Teachers: Although the sample field study did not focus on the collection of specific data on the quality of teaching and learning nor on teacher competencies, these issues
were raised extensively at the workshop to discuss the survey results. Apart from the generally low level of quality inputs e.g. textbooks and teachinglearning materials, the factors above
probably result in sub-optimal performance on the part of both teachers and students. The Teacher Law is partly intended to address issues related to teacher qualifications and
certification, linking these to remuneration.
Policy Recommendations
Based on the findings of the Study, a total of 42 policies have been formulated. To address the six major issues summarized above. The reform of systems of teacher employment and deployment
should be based on the following two broad policy thrusts:
Introducing system-wide equity in resource allocation by moving to a students – per - teacher school staffing entitlement and in so doing improving efficiency; and
Implementing policies that deploy teachers according to school needs, to improve equity, access and quality of education.
For ease of reference and follow-up, the recommendations have been grouped to align with likely administrative responsibilities:
Teacher recruitment, appointment, salaries and allowances; Classification of schools,
Teacher posting, transfer and attendance; Teacher progression and promotion;
Staffing of schools, Class size, including multigrade classes;
Teaching workload; Teaching subjects;
Student-staff ratios; Teacher housing in remote areas; and
School mergers. It is envisaged that through implementation of the recommended policies, Indonesia’s education
system will achieve a more equitable and efficient distribution, which will improve both access and
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Teacher Employment and Deployment In Indonesia
quality while also achieving significant financial savings. This study estimates that current teaching levels are 21 above optimal levels and that improved efficiencies could result in savings
in salary costs in the vicinity of 5.8 trillion Rupiah per annum.
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In order for policies to be implemented effectively, all interested parties must be aware of and take into account the context and realities of the situation. Feasibility issues and activities relating
to implementing the recommended policies from a government perspective include:
Status of current policies; Governance provisions;
Organization and management structures; Capacity and systems;
Service in remote schools; Teacher demand and supply;
Potential for corruption; and Required resources.
In recognition of the magnitude of the challenges involved in reforming systems of teacher employment and deployment nation-wide, the report has identifies a suite 25 of the
recommended polices for trial in a number of selected districts.
Conclusion
The importance of addressing the issues related to the employment and deployment of teachers cannot be overstated. The proposed initiatives have significant implications for improving equity
and efficiency and are vital for achieving improved access to and an improved quality of Indonesia’s school system.
8
Study team estimates. See Section 0 for calculations
Opportunities for Equity, Efficiency and Quality Improvement
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